TNP2K | Combating Poverty and Inequality: What Role for Social Protection
Combating Poverty and Inequality:
What role for social protection?
Sarah Cook
Director, UNRISD
Asia Public Policy Forum, Jakarta
28-30, May 2013
Outline
• The rise of social protection
• Historical and comparative experiences
• Current issues and challenges
• Expectations of social protection
– Reducing poverty
– Supporting development
– Addressing inequalities
• Functions of social policy
• Major challenges to realising the promise of SP
A ‘Quiet Revolution’
• Dramatic expansion of social protection programmes since
turn of century
• Estimated coverage 750 million - 1 billion people in the
developing world (DFID, 2011).
• 2010: operated in 52 countries including 16 LICs;
• covering 191.4 million households and 863 m individuals
(Bender et al. 2013)
Selected programmes
Social protection programs in Africa
• Ethiopia: Productive Safety Net Program (PSNP). In 2008, it covered 8.2
million people (Ellis et al. 2009)
• Ghana: Livelihood Empowerment Against Poverty (LEAP). It now reaches
35,000 households (Nino-Zarazua et al., 2012).
• Malawi: Mchinji Social Transfer Scheme. Started in 2006, it covered
18,180 households and over 70,000 individuals by December 2009
(Huijbregts, 2009).
• Kenya: Orphans and Vulnerable Children Program (CT-OVC).
• Zambia: five pilot social transfer schemes were introduced starting with the
Kalomo District Social Cash Transfer Scheme in 2004.
Social protection programmes
•
Argentina universal children allowance and pension - benefits about 2.5 million people,
mostly women (ILO 2011).
•
Brazil’s Bolsa Família currently covers about 13 million families. From 2011, Brasil Sem
Miséria (Brazil without poverty) to reach 16 million people living on less than US$45 a
month and eradicate extreme poverty by 2014.
•
Cape Verde’s social pension covers more than 90% of the target population.
•
South Africa’s Child Support Grant covers 7.5 million children. The Old Persons Grant
covers almost 2.6 million people (ILO, 2011).
•
China’s rural cooperative medical program covers 800 million people. In 2009, it launched
a pilot rural pension scheme that aims to cover 700 million rural people by 2020.
•
India’s National Rural Employment Guarantee Scheme reaches 52.5 million households.
Recently launched social insurance scheme Rastriya Swasthya Bima Yojana provided
more than 24 million smart cards by 2011.
Goals / Impacts of social protection programs
Challenges to coverage
• ILO estimates that only 20 per cent of the working age population
and their families worldwide have access to comprehensive
social security.
• Between 20 and 60 per cent of the global population enjoy very
basic coverage
• 40 per cent remain in situations of extreme vulnerability.
• Regional and between country variations are huge
• in low-income settings only formal sector workers (often only 5
to10 per cent of the workforce) are legally or effectively
(ILO, 2011).
Challenges to social protection programmes
•
•
•
•
•
•
•
•
Over a billion people are still living on less than US$1.25 a day
1.75 billion people experience multidimensional poverty with deprivations in
heath, economic opportunities, education and living standards (UNDP, 2010).
925 million suffer from chronic hunger (FAO, 2010).
2.6 billion people do not have access to improved sanitation and 884 million
people to improved sources of drinking water (UN-HABITAT, 2010).
828 million people live in slums with no or inadequate basic infrastructure such
as, drains, piped water supplies and electricity or sewers (UN-HABITAT, 2010).
796 million adults are illiterate (UNESCO, 2011).
8.8 million children under the age of five die every year from largely preventable
health problems (UNICEF, 2010; WHO, 2010).
150 million people suffer financial catastrophe annually, and 100 million are
pushed below the poverty line when compelled to pay for health care (WHO,
2010).
Definitions of social protection
• social assistance: non-contributory transfers (conditional or
unconditional; in cash or kind) to those eligible, on the basis eg of
income, age, rights as citizens or residents. Includes work-related
interventions such as public employment or food for work
• social insurance: generally employment-related programmes financed
from contributions such as unemployment and health insurance and
pensions;
• labour market policies that ensure basic standards and rights at work,
including collective bargaining, minimum wage policies, unemployment
insurance and prohibition of child labour.
Evolution of Policy Approaches
(1) « Golden Age »:
Social rights derived from
labour market participation
(3)
(2) Crises and Exclusive Growth:
Safety nets and targeting poor
Search for Inclusive Development (Growth):
Social rights derived from
citizenship/human rights
Social protection approaches
• Risk management framework (WB)
• Rights-based approaches (UN, NGOs)
• Needs-based agenda (MDGs)
Social policy instruments: Human rights
• The Right to Social Security (Art. 22)
• The Right to Medical Care and Social Services
(Art. 25)
• The Right to Education (Art. 26)
• ILO Conventions (No. 102); Recommendation
on SPF
• Convention on the Rights of the Child
• CEDAW: Elimination of All Forms of
Discrimination against Women
Global Social Protection Floor
Social Policy approaches:
Objectives, Instruments, Actors, Values
Universal approach
SP has multiple functions,
including protection,
promotion/development,
redistribution
–
–
–
–
Universalism
Strong State Role
Equality of outcomes
Macro-impact of SP:
• economic stabilization
• social cohesion
• political legitimation/nation
building
(Post -) Washington Consensus
social policy:
– SP is primarily a safety net,
aims at poverty reduction
and part of risk
management tool kit
– Targeting
– Market and private actors
– Equality of opportunities
– Micro-impact of SP
• adverse incentives
• market distortions
• behaviour
Combating poverty and inequality
What worked historically?
What lessons for
contemporary social
protection?
« Combating Poverty and
Inequality : Structural
change, social policy
and politics», UNRISD
Flagship Report – 2010
Key questions
• What accounts for the persistence of poverty when
concern for its reduction has been high on the
policy agenda?
• Why have some countries been more successful
than others in reducing poverty and inequality?
• How do current approaches to poverty reduction
compare & contrast with the lessons of the past?
• Cases: Nordics, East Asia, Costa Rica, Mauritius,
Kerala, Botswana, Brazil
Key findings suggest..
• Significant reductions in poverty generally result not from
policies aimed at poverty or targeting the poor per se
• but from a mix of policies that have wider economic,
social and political objectives:
• employment and inequality matter
• as do active states and citizens, political and institutional
arrangements
• Poverty is reduced & equity enhanced when economic
and social policies, institutions and political arrangements
are mutually supportive
• Countries that have successfully reduced
income poverty and improved social
conditions on a significant scale have done so
through comprehensive social protection
programmes integrated into broader
strategies of social policy and economic
development.
• In contrast, countries that adopted social
protection approaches emphasizing marketoriented instruments and narrowly targeted
interventions have tended to be less effective
in reducing poverty.
Inequality is rising…
Inequalities are growing..
• Graph here…
Why care about inequality?
High levels of inequality are an obstacle to poverty
reduction
• Poverty is closely related to intersecting inequalities based on eg
class, gender, ethnicity, locations...
Intersecting inequalities reinforce each other and may be
reinforced by market processes
make it harder to incorporate the poor in the growth process;
may encourage the emergence of institutions that lock the poor
into poverty traps
limit the size of the domestic market and prospects for sustained
growth;
may contribute to crime, social unrest and conflict and undermine
social cohesion and stability
Social policy in development context
Functions of ‘transformative’ social policy
Protection: protect people from income loss and
costs associated with unemployment, pregnancy,
sickness, chronic illness or disability, and old age;
Production/accumulation: enhance the productive
capacities of individuals, groups and communities;
Distribution: create conditions for more equitable
economic growth, secondary distribution – taxation
and redistribution
Reproduction: reduce the burden on hhs / women of
social reproduction including care-related work
‘New’ risks and challenges
Social Policy evolves in response to challenges: 21st
Century social policy in both developed and developing
countries needs to confront new risks, challenges,
interrelated crises and change processes:
–
–
–
–
–
–
–
–
–
Globalisation / financialisation
Economic crisis, volatility
(Un)employment, informality, ‘decent jobs’
Divergence – wages, productivity, profits (functional income distribution)
Inequalities and drivers: global / national; vertical / horizontal
Demographic: youth, aging, mobility, families…
Multipolarity, regionalism, nationalism
Climate / global (and local) environmental change (water/resources)
Social and political consequences: citizen mobilisation, instability..
Global policy challenges
• New structure of risks generate instability; global consensus
becomes more difficult; implications for national ‘policy space’
• Political/fiscal (and ideological) pressures to reduce welfare
spending - austerity (increasing in developing countries);
undermining principles of universalism and solidarity
• Globalisation/trade liberalisation creates challenges for national
policy making; challenges to national authorities to maintain social
stability and development
• Challenges increasingly global and require global solutions –
‘common but differentiated responsibilities’
• National social policies as key to development / transformation
• What could a ‘developmental’ welfare state look like to meet 21st
century challenges?
Follow UNRISD on …
www.unrisd.org
What role for social protection?
Sarah Cook
Director, UNRISD
Asia Public Policy Forum, Jakarta
28-30, May 2013
Outline
• The rise of social protection
• Historical and comparative experiences
• Current issues and challenges
• Expectations of social protection
– Reducing poverty
– Supporting development
– Addressing inequalities
• Functions of social policy
• Major challenges to realising the promise of SP
A ‘Quiet Revolution’
• Dramatic expansion of social protection programmes since
turn of century
• Estimated coverage 750 million - 1 billion people in the
developing world (DFID, 2011).
• 2010: operated in 52 countries including 16 LICs;
• covering 191.4 million households and 863 m individuals
(Bender et al. 2013)
Selected programmes
Social protection programs in Africa
• Ethiopia: Productive Safety Net Program (PSNP). In 2008, it covered 8.2
million people (Ellis et al. 2009)
• Ghana: Livelihood Empowerment Against Poverty (LEAP). It now reaches
35,000 households (Nino-Zarazua et al., 2012).
• Malawi: Mchinji Social Transfer Scheme. Started in 2006, it covered
18,180 households and over 70,000 individuals by December 2009
(Huijbregts, 2009).
• Kenya: Orphans and Vulnerable Children Program (CT-OVC).
• Zambia: five pilot social transfer schemes were introduced starting with the
Kalomo District Social Cash Transfer Scheme in 2004.
Social protection programmes
•
Argentina universal children allowance and pension - benefits about 2.5 million people,
mostly women (ILO 2011).
•
Brazil’s Bolsa Família currently covers about 13 million families. From 2011, Brasil Sem
Miséria (Brazil without poverty) to reach 16 million people living on less than US$45 a
month and eradicate extreme poverty by 2014.
•
Cape Verde’s social pension covers more than 90% of the target population.
•
South Africa’s Child Support Grant covers 7.5 million children. The Old Persons Grant
covers almost 2.6 million people (ILO, 2011).
•
China’s rural cooperative medical program covers 800 million people. In 2009, it launched
a pilot rural pension scheme that aims to cover 700 million rural people by 2020.
•
India’s National Rural Employment Guarantee Scheme reaches 52.5 million households.
Recently launched social insurance scheme Rastriya Swasthya Bima Yojana provided
more than 24 million smart cards by 2011.
Goals / Impacts of social protection programs
Challenges to coverage
• ILO estimates that only 20 per cent of the working age population
and their families worldwide have access to comprehensive
social security.
• Between 20 and 60 per cent of the global population enjoy very
basic coverage
• 40 per cent remain in situations of extreme vulnerability.
• Regional and between country variations are huge
• in low-income settings only formal sector workers (often only 5
to10 per cent of the workforce) are legally or effectively
(ILO, 2011).
Challenges to social protection programmes
•
•
•
•
•
•
•
•
Over a billion people are still living on less than US$1.25 a day
1.75 billion people experience multidimensional poverty with deprivations in
heath, economic opportunities, education and living standards (UNDP, 2010).
925 million suffer from chronic hunger (FAO, 2010).
2.6 billion people do not have access to improved sanitation and 884 million
people to improved sources of drinking water (UN-HABITAT, 2010).
828 million people live in slums with no or inadequate basic infrastructure such
as, drains, piped water supplies and electricity or sewers (UN-HABITAT, 2010).
796 million adults are illiterate (UNESCO, 2011).
8.8 million children under the age of five die every year from largely preventable
health problems (UNICEF, 2010; WHO, 2010).
150 million people suffer financial catastrophe annually, and 100 million are
pushed below the poverty line when compelled to pay for health care (WHO,
2010).
Definitions of social protection
• social assistance: non-contributory transfers (conditional or
unconditional; in cash or kind) to those eligible, on the basis eg of
income, age, rights as citizens or residents. Includes work-related
interventions such as public employment or food for work
• social insurance: generally employment-related programmes financed
from contributions such as unemployment and health insurance and
pensions;
• labour market policies that ensure basic standards and rights at work,
including collective bargaining, minimum wage policies, unemployment
insurance and prohibition of child labour.
Evolution of Policy Approaches
(1) « Golden Age »:
Social rights derived from
labour market participation
(3)
(2) Crises and Exclusive Growth:
Safety nets and targeting poor
Search for Inclusive Development (Growth):
Social rights derived from
citizenship/human rights
Social protection approaches
• Risk management framework (WB)
• Rights-based approaches (UN, NGOs)
• Needs-based agenda (MDGs)
Social policy instruments: Human rights
• The Right to Social Security (Art. 22)
• The Right to Medical Care and Social Services
(Art. 25)
• The Right to Education (Art. 26)
• ILO Conventions (No. 102); Recommendation
on SPF
• Convention on the Rights of the Child
• CEDAW: Elimination of All Forms of
Discrimination against Women
Global Social Protection Floor
Social Policy approaches:
Objectives, Instruments, Actors, Values
Universal approach
SP has multiple functions,
including protection,
promotion/development,
redistribution
–
–
–
–
Universalism
Strong State Role
Equality of outcomes
Macro-impact of SP:
• economic stabilization
• social cohesion
• political legitimation/nation
building
(Post -) Washington Consensus
social policy:
– SP is primarily a safety net,
aims at poverty reduction
and part of risk
management tool kit
– Targeting
– Market and private actors
– Equality of opportunities
– Micro-impact of SP
• adverse incentives
• market distortions
• behaviour
Combating poverty and inequality
What worked historically?
What lessons for
contemporary social
protection?
« Combating Poverty and
Inequality : Structural
change, social policy
and politics», UNRISD
Flagship Report – 2010
Key questions
• What accounts for the persistence of poverty when
concern for its reduction has been high on the
policy agenda?
• Why have some countries been more successful
than others in reducing poverty and inequality?
• How do current approaches to poverty reduction
compare & contrast with the lessons of the past?
• Cases: Nordics, East Asia, Costa Rica, Mauritius,
Kerala, Botswana, Brazil
Key findings suggest..
• Significant reductions in poverty generally result not from
policies aimed at poverty or targeting the poor per se
• but from a mix of policies that have wider economic,
social and political objectives:
• employment and inequality matter
• as do active states and citizens, political and institutional
arrangements
• Poverty is reduced & equity enhanced when economic
and social policies, institutions and political arrangements
are mutually supportive
• Countries that have successfully reduced
income poverty and improved social
conditions on a significant scale have done so
through comprehensive social protection
programmes integrated into broader
strategies of social policy and economic
development.
• In contrast, countries that adopted social
protection approaches emphasizing marketoriented instruments and narrowly targeted
interventions have tended to be less effective
in reducing poverty.
Inequality is rising…
Inequalities are growing..
• Graph here…
Why care about inequality?
High levels of inequality are an obstacle to poverty
reduction
• Poverty is closely related to intersecting inequalities based on eg
class, gender, ethnicity, locations...
Intersecting inequalities reinforce each other and may be
reinforced by market processes
make it harder to incorporate the poor in the growth process;
may encourage the emergence of institutions that lock the poor
into poverty traps
limit the size of the domestic market and prospects for sustained
growth;
may contribute to crime, social unrest and conflict and undermine
social cohesion and stability
Social policy in development context
Functions of ‘transformative’ social policy
Protection: protect people from income loss and
costs associated with unemployment, pregnancy,
sickness, chronic illness or disability, and old age;
Production/accumulation: enhance the productive
capacities of individuals, groups and communities;
Distribution: create conditions for more equitable
economic growth, secondary distribution – taxation
and redistribution
Reproduction: reduce the burden on hhs / women of
social reproduction including care-related work
‘New’ risks and challenges
Social Policy evolves in response to challenges: 21st
Century social policy in both developed and developing
countries needs to confront new risks, challenges,
interrelated crises and change processes:
–
–
–
–
–
–
–
–
–
Globalisation / financialisation
Economic crisis, volatility
(Un)employment, informality, ‘decent jobs’
Divergence – wages, productivity, profits (functional income distribution)
Inequalities and drivers: global / national; vertical / horizontal
Demographic: youth, aging, mobility, families…
Multipolarity, regionalism, nationalism
Climate / global (and local) environmental change (water/resources)
Social and political consequences: citizen mobilisation, instability..
Global policy challenges
• New structure of risks generate instability; global consensus
becomes more difficult; implications for national ‘policy space’
• Political/fiscal (and ideological) pressures to reduce welfare
spending - austerity (increasing in developing countries);
undermining principles of universalism and solidarity
• Globalisation/trade liberalisation creates challenges for national
policy making; challenges to national authorities to maintain social
stability and development
• Challenges increasingly global and require global solutions –
‘common but differentiated responsibilities’
• National social policies as key to development / transformation
• What could a ‘developmental’ welfare state look like to meet 21st
century challenges?
Follow UNRISD on …
www.unrisd.org